Teacher Rachel Sadler (left) listens to a question from Anzhela Klimenko (far right), who is from Kazakhstan, during an English class at San Francisco International High School, which educates immigrant children.

On average, it takes just over four years for an English learner in San Francisco schools to be recognized as fluent in the language. It takes seven years in Hayward and more than 10 years in Oakland and West Contra Costa County.

And while quality of instruction can play a role, the difference depends largely on how stringently each district defines fluency - and that should change, according to a state study released Tuesday.

The study, by the Public Policy Institute of California, concludes that the definition of fluency should be standardized and simplified so that English learners are considered fluent a lot sooner.

As it is now, some districts rely heavily on scores on standardized and language tests. Others depend more on classroom grades. Still others say that, ultimately, the teacher knows best.

In other words, the same student could be considered fluent in one district but an English learner in another.

The study followed students who were in second grade in 2002 in Los Angeles and San Diego over a 10-year period, assessing how they were determined to be fluent in English and when.

Long term, the researchers found that how didn't matter as much as when.

High achievers

Students who started elementary school as English learners and then reached fluency by fifth grade were among the highest-achieving students in the districts - even compared with native English speakers, the study found.

"In both Los Angeles and San Diego, students reclassified in elementary school are among the best academic performers," Laura Hill, PPIC policy researcher and co-author of the report, said in a statement. "We don't see evidence that they falter at higher grade levels relative to their classmates who are native English speakers."

The study also found that while districts create their own formula of test scores, grades and other factors for determining fluency, one test - the California English Language Development Test - was the best indicator of whether a student was ready for reclassification.

"The key question is whether English learners ... would benefit from being reclassified slightly sooner, through an easing of reclassification standards, which would allow districts to concentrate their resources on the most linguistically needy English learners," the authors wrote. "Our findings in the two largest districts in California lead us to believe that the answer is yes."

Currently, state guidelines say students should be considered fluent if they test high on an English-language test, score at a basic level on language arts exams, and have teacher and parent buy-in.

About a third of English learners have the test scores to reach fluency, but only 12 percent statewide are officially redesignated each year.

In San Francisco, an automated system triggers a fluency review for students with high enough test scores, leading to a higher redesignation rate.

But a lot of districts have more rigorous standards, requiring even higher test scores or a minimum grade-point average. That means students keep the English-learner label longer - sometimes a lot longer, which causes some students to lag academically.

"Some become so-called 'long-term English learners' and never become fluent," said state Sen. Alex Padilla, D-Pacoima (Los Angeles County), who has worked for a more uniform system. "That is unacceptable. Academic success hinges on English proficiency."

And yet, there is zero financial incentive for districts to move a student from English learner status to fluency. In fact, there's a disincentive.

Extra funding

Under the state's new school funding formula, districts get an extra $1,511 for a student who is either an English learner or low-income student (although not double if a student is both).

And a district with a high percentage of English learners or low-income students gets even more money.

The money flows until a student is redesignated as fluent. And while districts financially benefit, the kids don't.

Not only is there a stigma associated with the label of English learner, but the designation requires high school students to take an English-language class, leaving no room for the electives required to qualify for university admission.

"As California implements new standards, testing, and a new funding formula, it makes sense to establish simpler, statewide reclassification requirements," said co-author Julian Betts, PPIC fellow and professor of economics at UC San Diego. "This would allow districts to concentrate their dollars on their lowest-performing students - without slowing the academic progress of English learners who are performing well enough to be reclassified in elementary school."

Gaining fluency

The percentage of English learners who are redesignated as fluent each year varies widely from district to district.